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Why it matters (stated purpose and practical effect)

• Official purpose: to identify, protect and conserve the Commonwealth heritage values of Goods Island Lighthouse (built 1886–87 and Commonwealth‑listed) while continuing its operation as an Aid to Navigation (AtoN) (Section 1.2; Section 5.1).
• Practical effect: the plan binds AMSA operationally to conserve specific fabric items (lens assembly, lantern, tower fabric, etc.), to follow specified approval pathways before works that might affect heritage values, to monitor and report on condition regularly, and to prioritise maintenance essential to navigational safety (Sections 4, 5, 6.1, 7 Policies 1–7, 8.1).

Testing the stated purpose against costs, incentives and trade‑offs

• Who pays: AMSA funds maintenance, reporting and any heritage assessments; costs fall on AMSA’s asset/operations budget and its maintenance contractors (Sections 6.4, 8.1). If AMSA proposes works that require external approvals, there can be additional consultant and approval costs (Section 7 Implementation strategies).
• Incentives and trade‑offs: AMSA must balance two objectives: (a) keep the light available and reliable to meet IALA Category 1 availability targets for navigation (99.8%), and (b) retain original historic fabric and appearance (Section 6.4; Section 5.2). That creates a trade‑off: upgrades or replacements needed for reliability could threaten heritage fabric and require heritage approvals, slowing or adding cost to operational responses (see Policy 2; decision processes in Section 6.7).
• Opportunity cost: funds and contractor time devoted to heritage conservation reduce resources available for other AtoN projects. Conversely, failure to maintain the AtoN risks navigation safety and breach of AMSA statutory duties under the Navigation Act (Section 6.3).
• Compliance burden: the plan imposes recurring administrative tasks (biennial condition reports, 5‑year review, reporting to the Department if heritage values change), heritage impact statements for major works, and consultation obligations; these increase project lead times and administrative expense (Sections 7 Policy 7, Section 8.2, Section 6.7).
• Bureaucratic discretion and decision paths: AMSA retains primary operational discretion about routine maintenance and scheduling, but must obtain heritage advice and, where the EPBC Act triggers, Ministerial approval for actions likely to significantly affect heritage values (Sections 6.1, 6.7, 7 Policy 11). That mixes internal discretion with external regulatory gates, creating potential hold‑points for projects.
• Implementation risks and constraints: the site is remote (helicopter/vessel access), raising travel and logistics costs and weather‑sensitive scheduling for maintenance (Section 2.4). There are also risks of discovering Aboriginal cultural material that will halt works pending assessment (Section 6.7; Policy 12).
• Effects on private choice and markets: the plan does not restrict private commerce generally. It creates demand for specialist heritage consultants and contractors with the skills to work on historic lighthouses (Policy 10). If AMSA ever divests the site, the plan anticipates transfer processes and sharing of records with the State (Policy 16), which could affect the bundle of rights a future owner would have and therefore the site’s market value (Section 6.7).

Concrete behaviour changes required by the plan

• AMSA must keep the lighthouse operational to navigation standards while conserving the fabric (Policy 1–2; Sections 6.4, 8.1).
• Contractors must follow heritage‑aware methods, attend training, and produce reports (Policies 9–11; Section 8).
• For any major works or upgrades, AMSA must prepare a Heritage Impact Statement and seek Department/Minister review/approval as required (Section 6.7, Section 7 Policy 5).
• Traditional Owners must be consulted in planning, and works must halt for discoveries of Aboriginal heritage items (Section 1.3; Section 6.7).

Selected relevant sections for quick reference: Section 1.1 (statutory basis and purpose), Section 2.3 (lease and land control), Section 4 (fabric register), Section 5 (heritage values), Section 6 (opportunities, constraints, statutory context), Section 7 (policies 1–18), Section 8 (implementation and monitoring).

Short takeaways (one‑line): AMSA must keep Goods Island Lighthouse working to safety standards while conserving specified Commonwealth heritage fabric; doing so creates recurring maintenance and reporting costs, requires heritage approvals for consequential works, and requires consultation with Traditional Owners and the Department under the EPBC Act (Sections 6.1, 7, 8).

Email: Heritage@amsa.gov.au

Website: www.amsa.gov.au

Attribution

AMSA’s preference is that you attribute this publication (and any material sourced from it) using the following wording:

Source: Australian Maritime Safety Authority Goods Island Lighthouse Heritage Management Plan – 2023

Front cover image

Figure 1. Goods Island Lighthouse (© AMSA, 2021)

More information

For enquiries regarding copyright including requests to use material in a way that is beyond the scope of the terms of use that apply to it, please contact us through our website: www.amsa.gov.au

Table of contents

Executive Summary

1. Introduction

   1. Background and purpose
   2. Heritage management plan objectives
   3. Methodology
   4. Status
   5. Authorship
   6. Acknowledgements
   7. Language
   8. Previous reports
   9. Sources of information and images

2. Goods Island Lighthouse site

2.1 Location

2.2 Setting and landscape

2.3 Lease and management

2.4 Access

2.5 Listings

3. History

3.1 General history of lighthouses in Australia

3.2 The Commonwealth Lighthouse Service

3.3 Goods Island: a history

3.4 Building a lighthouse

3.5 Chronology of major events

3.6 Changes and conservation over time

3.7 Summary of current and former uses

3.8 Summary of past and present community associations

3.9 Unresolved questions or historical conflicts

3.10 Recommendations for further research

4. Fabric

4.1 Fabric register

4.2 Related object and associated AMSA artefact

4.3 Comparative analysis

5. Heritage significance

5.1 Commonwealth heritage listing – Goods Island Lighthouse

5.2 Condition and integrity of Commonwealth heritage values

5.3 Gain or loss of Commonwealth heritage values

5.4 Other heritage listings

6. Opportunities and constraints

6.1 Implications arising from significance

6.2 Framework: sensitivity to change

6.3 Statutory and legislative requirements

6.4 Operational requirements and occupier needs

6.5 Proposals for change

6.6 Potential pressures

6.7 Processes for decision-making

7. Conservation management principles and policies

8. Policy implementation plan

8.1 Plan and schedule

8.2 Monitoring and reporting

Appendices

Appendix 1. Glossary of heritage conservation terms

Appendix 2. Glossary of historic lighthouse terms relevant to Goods Island Lighthouse

Appendix 3. Table demonstrating compliance with the EPBC Regulations

Appendix 4. Goods Island current light details

Endnotes

Reference list

List of Figures

Figure 1. Cover photo of Goods Island Lighthouse (© AMSA, 2020)

Figure 2. Planning process applied for heritage management (Source: Australia ICOMOS, 1999)

Figure 3. Location of Goods Island Lighthouse along Australian coastline (Map Data @2021 Google,

TerraMetrics)

Figure 4. Location of Goods Island Lighthouse in the Torres Strait (Map Data @2021 Google, NASA,

TerraMetrics)

Figure 5. View of Goods Island Lighthouse (© AMSA, 2020)

Figure 6. Map of AMSA lease, Goods Island (Map data: DigitalGlobe Imagery Tile Service,

DigitalGlobe Inc. ESRI World Street Map)

Figure 7. Helicopter access at Goods Island Lighthouse site (© AMSA, 2020)

Figure 8. Incandescent oil vapour lamp by Chance Brothers (Source: AMSA)

Figure 9. Dioptric lens on display at Narooma (Source: AMSA)

Figure 10. Dalén's system - sunvalve, mixer and flasher (Source: AMSA)

Figure 11. Goode Island Tower - details, 1922. Courtesy of the National Archives of Australia. NAA:

J2776, QN 06 010 (© Commonwealth of Australia, National Archives of Australia)

Figure 12. A family group at the Goods Island Lighthouse ca. 1909 (Courtesy of the State Library of

Queensland)

Figure 13. Grassy Hill Lighthouse, Cooktown QLD, first lit 1886. Courtesy of the National Archives of

Australia. NAA: A1500, K28005 (© Commonwealth of Australia, National Archives of

Australia)

Figure 14. Goods Island Lighthouse, Goods Island (Palilag) QLD, first lit 1887 (© AMSA, 2014)

Acronym List

List of acronyms utilised throughout this heritage management plan:

Executive summary

Built in 1886-1887, Goods Island Lighthouse was constructed to assist vessels traversing the Torres Strait. The lighthouse is notable for its heritage significance and was placed on the Commonwealth Heritage List in 2004 for its association with the maritime history of the Torres Strait. It is also notable for its rarity as being the only known lighthouse to have been constructed entirely by the Queensland State Government, and its retention of the principal characteristics of a late 19th century lighthouse.

Situated approximately 5.3 kilometres north-west of Thursday Island, the lighthouse stands on Goods Island (Palilag), a two kilometre long, uninhabited Island within the Torres Strait. The lighthouse was constructed by the Queensland State Government in 1886 and the light was first exhibited in 1887. As a working aid to navigation (AtoN), the lighthouse tower is operated and managed by the Australian Maritime Safety Authority (AMSA).

The lighthouse was fitted with an 1886 Chance Brother & Co. 250mm fixed lens on a cast iron pedestal, and the lighthouse has retained this original assembly. The light operates on an automated mechanism as part of AMSA’s network of AtoN, and equipment is serviced by AMSA’s maintenance contractor who visits at least once per year. AMSA officers visit on an ad hoc basis for auditing, project and community liaison purposes.

This heritage management plan concerns the lighthouse tower, however it also addresses the management of the surrounding precinct and land. The plan is intended to guide AMSA’s decisions and actions. AMSA has prepared this plan to integrate the heritage values of the lighthouse in accordance with the Environment Protection and Biodiversity Conservation Act 1999 Cth (EPBC Act), and the Environment Protection and Biodiversity Conservation Regulations 2000 Cth (EPBC Regulations).

Being well built and generally well maintained, the lighthouse precinct is in relatively good, stable condition. The policies and management guidelines set out in this heritage management plan strive to ensure that the Commonwealth heritage values of Goods Island Lighthouse are recognised, maintained, and preserved for future generations.

1. Introduction

1.1 Background and purpose

The Australian Maritime Safety Authority (AMSA) is the Commonwealth agency responsible for coastal AtoNs. AMSA’s network includes Goods Island Lighthouse, built in 1886.

Section 341S of the Environment Protection and Biodiversity Conservation Act 1999 (Cth) (EPBC Act) requires AMSA to prepare a management plan for Goods Island Lighthouse that addresses the matters prescribed in Schedules 7A and 7B of the Environment Protection and Biodiversity Conservation Regulations 2000 (Cth) (EPBC Regulations). The principal features of this management plan are:

a description of the place, its heritage values, their condition and the method used to assess its significance
an administrative management framework
a description of any proposals for change
an array of conservation policies that protect and manage the place
an implementation plan
ways the policies will be monitored and how the management plan will be reviewed.

AMSA has prepared this heritage management plan to guide the future conservation of the place. This plan provides the framework and basis for the conservation and best practice management of Goods Island Lighthouse in recognition of its heritage values. The policies in this plan indicate the objectives for identification, protection, conservation and presentation of the Commonwealth heritage values of the place. Figure 2 shows the basic planning process applied.

Figure 2. Planning process applied for heritage management (Source: Australia ICOMOS, 1999)

1.2 Heritage management plan objectives

The objectives of this heritage management plan are to:

• protect, conserve and manage the Commonwealth heritage values of Goods Island Lighthouse
• interpret and promote the Commonwealth heritage values of Goods Island Lighthouse
• manage use of the lighthouse
• use best practice standards, including ongoing technical and community input, and apply best available knowledge and expertise when considering actions likely to have a substantial impact on Commonwealth heritage values.

In undertaking these objectives, this plan aims to:

• provide for the protection and conservation of the heritage values of the place while minimising any impacts on the environment by applying the relevant environmental management requirements in a manner consistent with Commonwealth heritage management principles.
• take into account the significance of the region as a cultural landscape occupied by Aboriginal people over many thousands of years.
• recognise that the site has been occupied by lease holders since the early 20th century.
• encourage site use that is compatible with the historical fabric, infrastructure and general environment.
• record and document maintenance works, and changes to the fabric in Goods Island Lighthouse fabric register.

The organisational planning cycle and associated budgeting process is used to confirm requirements, allocate funding and manage delivery of maintenance activities. Detailed planning for the AtoN network is managed through our internal planning processes.

An interactive map showing many of AMSA’s heritage sites, including Goods Island Lighthouse, can be found at AMSA Heritage Lighthouses Interactive MapP0FP0F[i]PP.

1.3 Methodology

The methodology used in the preparation of this plan is consistent with the recommendations of The Burra Charter and with the requirements of Chapter 5, Part 15 Division 1A of the EPBC Act. In particular, the plan:

• details the history of the site based on information sourced from archival research, expert knowledge, and documentary resources,
• provides a description of the site based on information sourced from site inspection reports and fabric registers, and;
• details the Commonwealth heritage criteria satisfied by Goods Island Lighthouse as set out by schedule 7A of the EPBC Regulations.

The criterion set out at Schedule 7A (h) (i-xiii) informed the development of the required policies for the management of Goods Island Lighthouse, in conjunction with input from the Department of Climate Change, Energy, the Environment and Water (DCCEEW) on best practice management.

Consultation

In preparation of the plan, AMSA sought engagement with Kaurareg Elders who provided information on the history of the Island, and past and present associations held. This information was included within the plan.

The draft management plan was advertised in accordance with the EPBC Act and EPBC Regulations. On 4 May 2022 a notice was placed in The Australian newspaper publication which invited the general public to review the draft plan on AMSA’s website and provide feedback. Public consultation closed on 1 June 2022 and no submissions were received.

A developed draft was submitted to the Minister through the Department of Climate Change, Energy, the Environment and Water (Heritage Branch) and in that process the Minister’s delegate sought advice from the Australian He

This is an opening excerpt, not the complete document.